Russia HUMAN Choking on Bureaucracy RIGHTS State Curbs on Independent Civil Society Activism WATCH February 2008 Volume 20, No. 1(D) Choking on Bureaucracy State Curbs on Independent Civil Society Activism I. Summary............................................................................................................... 1 Methodology.......................................................................................................5 II. Recommendations ...............................................................................................7 To the Russian Government.................................................................................7 With regard to the 2006 NGO law...................................................................7 To safeguard the work and role of NGOs in general ........................................7 To Russia’s International Partners, particularly the European Union and the Council of Europe............................................................................................... 8 To Donors .......................................................................................................... 9 III. Background.......................................................................................................10 Dismantling Checks and Balances.....................................................................10 Crackdown on Dissent and Political Opposition................................................. 12 Adoption of the 2006 NGO Law ......................................................................... 13 Efforts to Discredit Human Rights and Foreign-Funded NGOs ............................. 17 Russia’s NGO Sector .........................................................................................18 NGO funding................................................................................................19 Human rights NGOs’ declining influence......................................................20 Public Chamber ................................................................................................ 21 IV. The 2006 NGO Law............................................................................................23 European Convention on Human Rights.............................................................26 Changes Introduced by the 2006 NGO Law at a Glance......................................29 The 2006 NGO Law in Practice...........................................................................32 Registration of new organizations and registration of statute and other changes ......................................................................................................33 Registration Service inspections of NGOs.....................................................35 Annual reporting..........................................................................................43 NGO dissolution ..........................................................................................45 Offices of foreign NGOs operating in Russia .................................................48 V. Other Types of Pressure on Civil Society ............................................................50 Administrative and Judicial Harassment ............................................................50 Criminal proceedings against heads of NGOs...............................................50 Administrative harassment..........................................................................54 Anti-Extremism Legislation ..........................................................................63 Threats to Activists ..................................................................................... 68 Acknowledgments..................................................................................................72 I. Summary Over the past eight years, the Russian government under President Vladimir Putin has engaged in efforts to weaken beyond recognition the checks and balances inherent in a truly democratic political system. A recent aspect of these efforts has been a policy to subject Russia’s vibrant civil society to greater scrutiny and control, through a 2006 law that gives the government broad powers to regulate the activities of nongovernmental organizations (NGOs). The government has also used other measures, such as the amended 2002 anti-extremism law and a variety of administrative regulations, to target organizations that work on controversial issues, may be capable of galvanizing public dissent, or that receive foreign funding. This report documents the corrosive impact the 2006 law and other government measures have had on civil society in Russia. It demonstrates how these policies are aimed at weakening critical voices in Russia and have profoundly undermined independent activism. The crackdown on civil society must be understood in the context of growing authoritarianism in Russia. After the Kremlin’s legal and regulatory changes of the past eight years all of the major democratic institutions remain in place, but they have been largely voided of their capacity to serve as a check on executive power, in particular the Kremlin. The government has obliterated independent television, established considerable control over the print media, marginalized the parliamentary opposition, and ended the direct election of regional governors. The independence of the judiciary has also been compromised. The Kremlin has made clear that the 2006 law aims to control and monitor foreign funding of NGOs, which it has viewed with intense suspicion since the so-called color revolutions in Georgia in 2003 and Ukraine in 2004. There, public uprisings ousted governments following elections that were allegedly rigged. The uprisings were perceived as having been driven by foreign-funded NGOs. President Putin has made several public statements discrediting NGOs as fronts for foreign governments seeking to interfere with Russia’s internal affairs and weaken the country. Other government leaders have followed suit. 1 Human Rights Watch February 2008 The government responded to initial criticism about the NGO law, which entered into force in April 2006, by arguing that it was doing what all states have the right to do— regulate NGOs—and that the new law is consistent with European standards. Any state has the right to regulate, and even set restrictions on, NGOs. But in order to be compatible with protections under international law for freedom of expression and association, these restrictions must be proportionate, necessary for a democratic society, and must pursue a legitimate aim. The restrictions must also be sufficiently clear so that those subject to them can reasonably know how to comply. The restrictions in the 2006 law do not meet these tests. The law grants state officials excessive powers to interfere in the founding and operation of NGOs. For example, the Federal Registration Service may reject registration applications or notifications of organizational and operational changes if the organization’s “documents are prepared in an inappropriate manner,” which can and has been used to reject notifications on petty, minor grounds, such as typos or errors in formatting. The 2006 law and implementing regulations impose onerous reporting requirements on NGOs, especially relating to any foreign sources of funding. It gives the Registration Service unlimited discretion to request documents for inspection and to interpret them, including for compliance with the constitution, laws, and “interests” of Russia in the broadest terms. In several cases, Human Rights Watch found that government officials had made burdensome requests for documents, including for confidential records and communications with clients. The law also allows state officials to conduct intrusive inspections of NGOs on an annual basis. These inspections have become one of several tools for harassing NGOs and obstructing their work. The Registration Service is also authorized to inspect NGOs in response to complaints by citizens, as well as in response to information from state agencies suggesting violations. The 2006 law has a punitive dimension. The Registration Service may issue warnings to NGOs for a wide variety of violations, many of them quite minor, including not filing timely activity reports, errors in founding documents, and the like. Essential Choking on Bureaucracy 2 NGO tools such as needs assessment to help with project design have been found, absurdly, to be against the national interest. A project proposal by one small St. Petersburg for a workshop with police, in stating that police do not have sufficient awareness of the rights of refugees, was declared to have discredited the police force and hence undermined Russia’s interests. Implementing regulations also grant the Registration Service the authority to petition for dissolution of an organization that has received as few as two warnings regarding the same violation. There appears to be no statute of limitations on such warnings. Although the law provides a mechanism for appealing such warnings and other decisions, court proceedings are time-consuming and challenging, and not all groups have the resources, financial and human, that would allow them to endure lengthy court proceedings. What is more, there is growing concern among NGO activists that they may not be able to get a fair hearing in many Russian courts. Under the 2006 law, all foreign NGOs operating in Russia must inform the Registration Service about their